Papers Relating to the Foreign Relations of the United
States, The Paris Peace Conference, 1919, Volume XIII

Section II.—Naval clauses (Art. 181 to
197)

Notes to Part V, Section II, Articles 181 to 197

The naval clauses of the treaty of peace eliminated Germany from the
competition in naval armament which had prevailed before the war of
1914–18. In that period, Great Britain had tried to keep a “two-power
standard”. On March 17, 1920 the First Lord of the Admiralty announced a
“one-power standard” (House of Commons, Debates, 5th series, 126, col.
2301). In that address he said:

“We are very fortunate in the fact that the only navy
approximating in strength to our own is that of the United
States of America, with whom we are associated in such a way
that the idea of competition in armaments between us is one that
is, to put it mildly, repugnant to us all; and we here—and I
speak now, not merely for the Board of Admiralty, but for the
Government—hope and believe that if there is to be an emulation
between the United States of America and ourselves, it is likely
to be in the direction of reducing that ample margin of naval
strength which we each alike possess over all other nations.
That is the foundation of the naval policy of His Majesty’s
Government.”

On March 12, 1921 in a memorandum on naval policy the First Lord of the
Admiralty stated:

“Estimates can only be based upon policy, and the naval policy of
the Government, as announced by my predecessor, in the House of
[Page 338]Commons, on March
17, 1920, is to maintain a “one-power standard”—i.e., that our
navy should not be inferior in strength to that of any other
power.”

The great expansion of navies during the war left a heritage of matériel
in excess of post-war needs. In the United States there was a keen
disposition to reduce expenses by limiting armament, which was evidenced
by the passage of congressional resolutions and by the expression of
public opinion. The President called the Conference for the Limitation
of Naval Armament, which resulted in striking a 5:5:3:1.75:1.75 ratio
for the capital ships and aircraft carriers in the fleets of the United
Kingdom, the United States, Japan, France, and Italy respectively. This
treaty for the limitation of naval armament, signed at Washington on
February 6, 1922 (Treaty Series 671; 43 Stat. 1655; Treaties, Conventions, etc., 1923–37, iv, 4889), entered into force on August 17, 1923 and was
stipulated to remain in force until December 31, 1936.

In 1922 meetings held at Rome, under the auspices of the League of
Nations, attempted without result to apply the principles of the
Washington treaty to naval armament in general. In 1925 the League of
Nations established the Preparatory Commission for the Disarmament
Conference and in 1927 the President of the United States convened at
Geneva the Conference for the Limitation of Naval Armament, which was
intended to apply the principles of the Washington treaty to other
categories of war vessels. That conference closed on August 24, 1927
without accomplishing its purpose.

In continuation of this effort, a treaty for the limitation and reduction
of naval armament was signed at London on April 22, 1930 and entered
into force for the United States, the United Kingdom and other parts of
the British Empire, and Japan, on October 27, 1930 (Treaty Series 830;
46 Stat. 2858; Treaties, Conventions, etc.,
1923–37, iv, 5268). This treaty provided for
replacements and established rules for determining standard
displacement, and provided for disposal of war vessels. It fixed
limitations for cruisers, destroyers, and submarines, varying somewhat
from the ratios adopted in 1922. The treaty, except for part IV,
terminated December 31, 1936. France and Italy did not become parties to
it. Japan, which had become dissatisfied with the 5:3 ratio, gave the
requisite two years’ notice of intention to terminate both the 1922 and
1930 treaties.

In the meantime, the Preparatory Commission for the Disarmamerit [Page 339]Conference at Geneva had been
developing the draft disarmament convention, which was completed on
December 9, 1930 for the consideration of the Conference for the
Reduction and Limitation of Armaments, which opened on February 2, 1932.
In this draft, the principles agreed upon in the 1922 and 1930 treaties
were the basis of the part devoted to naval armament. Those two treaties
controlled the ratios between approximately nine tenths of the naval
armament of the world, and the adjustment of the principles involved to
the naval craft of all the 59 participating states was not regarded as
an essentially difficult problem, though many technical and complex
questions respecting naval armament were raised. The inherent
difficulties encountered by the Conference for the Reduction and
Limitation of Armaments related to European land armament.

The Japanese denunciation of the 1922 and 1930 treaties in December 1934,
to take effect on December 31, 1936, created a new situationi In March
1935 Germany added to the complications of the armament problem by its
unilateral action in introducing military conscription and in embarking
upon a program of air armament. On June 18, 1935 the United Kingdom
concluded an agreement with Germany which permanently fixed the future
strength of the German Navy at 35 per cent of the aggregate naval
strength of the British Commonwealth of Nations, applied by categories
of war vessels, except for submarines, which were not to exceed 45 per
cent of the British tonnage unless previous notice to, and discussions
with, the United Kingdom Government had occurred (United Kingdom, Treaty
Series No. 22 (1935), Cmd. 4953).

With a view to reconstructing the system of control for naval armament
laid down in the 1922 and 1930 treaties, a conference was convened in
London, from which Japan withdrew. The ensuing treaty for the limitation
of naval armament was there signed on March 25, 1936 and entered into
force until December 31, 1942 for the United States, France, and the
British Commonwealth of Nations (except the Union of South Africa and
Ireland) on July 29, 1937 (Treaty Series No. 919; 50 Stat. 1363; Treaties, Conventions, etc., 1923–37, iv, 5548). An agreement between the United
Kingdom and Italy consisting of a protocol and annexed exchanges of
notes, signed at Rome April 16, 1938, dealt with several phases of the
relations of the two states, among which was Italian accession to the
treaty of March 25, 1936 (United Kingdom, Treaty Series No. 31 (1938),
Cmd. 5726), effective December 2, 1938.

The treaty of 1936 was built on the principle of qualitative limitation
and limited the maximum tonnage and gun caliber of the several
categories of vessels in accordance with agreed definitions of
displacement, categories, and age of vessels. It did not provide for
quantitative limitation as did the expiring treaties of 1922 and 1930,
but it did provide for advance notification and exchange of information
in regard to building and acquisition programs.

On July 17, 1937 the United Kingdom signed agreements with the
Governments of Germany and the Union of Soviet Socialist Republics
providing for the limitation of naval armament and the exchange of
information concerning naval construction based on the treaty of 1936,
with certain reservations arising out of special German and Soviet
circumstances (United Kingdom, Treaty Series Nos. 2 and 17 (1938), Cmd.
5637, 5679). Both entered into force on November 4, 1937 and were
stipulated to remain in force until December 31, 1942. On April 27, 1938
the United Kingdom signed with Poland a similar agreement, which entered
into force on November 22, 1938 (United Kingdom, Treaty Series No. 1
(1939), Cmd. 5916). On December 21, 1938 a similar agreement was signed
by the United Kingdom with Denmark, Finland, Norway, and Sweden (United
Kingdom, Misc. No. 6 (1939), Cmd. 5999) but did not enter into
force.

In 1938 the naval authorities of the United States, France, and the
United Kingdom reached the conclusion that the Japanese Government,
which had absented itself from all naval agreements since 1934, was
building capital ships exceeding the limit of 35,000 tons fixed by the
1936 treaty. The three Governments, therefore, concluded a protocol on
June 30, 1938 which modified article 4 of the treaty of March 25, 1936
by fixing a limit for capital ships of 45,000 tons (45,750 metric tons)
and confirming a maximum caliber for guns of 16 inches (Executive
Agreement Series 127; United Kingdom, Treaty Series No. 43 (1938), Cmd.
5781). Identic protocols were signed by the United Kingdom with Germany
on June 30, 1938 (United Kingdom, Treaty Series No. 56 (1938), Cmd.
5834), with the Soviet Union on July 6, 1938 (ibid., No. 39 (1939), Cmd. 6074), and with Poland on July 22,
1938 (ibid., No. 2, (1939), Cmd. 5917), while the
change was incorporated in the unratified agreement signed in December
with Denmark, Finland, Norway, and Sweden.

Article 25 of the treaty of March 25, 1936 provided for “escalation”, [Page 341]that is, the right to depart
from the limitations and restrictions of the treaty “if, and to the
extent to which” a contracting party “considers such departure necessary
in order to meet the requirements of his national security”. The United
States gave the requisite notice to benefit by this provision on March
31, 1938, in view of the fact that “the Japanese Government did not
choose to furnish information with regard to its present naval
construction or its plans for future construction” upon inquiry
concerning reports of construction not in conformity with the
limitations and restrictions of the treaty. The British and French
Governments acceded to this protocol for themselves.

On April 28, 1939 Germany denounced the agreement of April 17, 1938 and
the protocol of June 30, 1938 with the United Kingdom. The German Führer
in an address to the Reichstag, as well as in the memorandum denouncing
the agreement, held forth the future desirability of “a clear and
categorical understanding on a sure basis”. The British reply of June 23
closed with a desire “to know how the German Government would propose to
ensure that any action in the shape of denunciation or modification of
the new agreement during the terms of its validity should carry the
consent of both parties”. (Germany, Auswärtiges Amt, 1939, No. 2, Documents on the Origin of the War, Nos. 294,
295; United Kingdom, Documents Concerning
German-Polish Relations and the Outbreak of Hostilities Between
Great Britain and Germany on September 3, 1939, Nos. 21, 22,
24, Misc. No. 9 (1939), Cmd. 6106).

On the outbreak of the war notification was given to Poland and the
Soviet Union of the suspension, so far as the United Kingdom was
concerned, of all obligations under the agreements.

Article 181.

After the expiration of a period of two months from the coming into force
of the present Treaty the German naval’ forces in commission must not
exceed:

6 battleships of the Deutschland or Lothringen type,

6 light cruisers,

12 destroyers,

12 torpedo boats,

or an equal number of ships constructed to replace them
as provided in Article 190.

All other warships, except where there is provision to the contrary in
the present Treaty, must be placed in reserve or devoted to commercial
purposes.

Note to V, 181

On June 18, 1935 the United Kingdom and Germany concluded an agreement
which, so far as they were concerned, nullified articles 181–197 of the
treaty and authorized a level of German naval armament inconsistent with
those provisions as they remained technically in force for other parties
to the treaty of peace. Actually, Germany had been building a navy for
several years, regardless of the treaty. The agreement established a
“permanent relationship” between the total tonnage of the German fleet
and the aggregate tonnage of the naval forces of the British
Commonwealth of Nations in the ratio of 35:100, the submarine ratio
being fixed at 45:100 (161 League of Nations Treaty Series, p. 9). The
agreement by relating the German fleet to the current treaty limiting
naval armament was the first of several by which the United Kingdom
sought to bring European states within the existing system of naval
limitation (see ante, p.
339). Germany, however, denounced the whole arrangement on
April 28, 1939.

Article 182.

Until the completion of the mines weeping prescribed by Article 193
Germany will keep in commission such number of minesweeping vessels as
may be fixed by the Governments of the Principal Allied and Associated
Powers.

Article 183.

After the expiration of a period of two months from the coming into force
of the present Treaty the total personnel of the German Navy, including
the manning of the fleet, coast defences, signal stations,
administration and other land services, must not exceed fifteen
thousand, including officers and men of all grades and corps.

The total strength of officers and warrant officers must not exceed
fifteen hundred.

Within two months from the coming into force of the present Treaty the
personnel in excess of the above strength shall be demobilized.

No naval or military corps or reserve force in connection with the Navy
may be organised in Germany without being included in the above
strength.

The German law of March 23, 1921 embodied the provisions of the treaty
with respect to size of the fleet.

Article 184.

From the date of the coming into force of the present Treaty all the
German surface warships which are not in German ports cease to belong to
Germany, who renounces all rights over them.

Vessels which, in compliance with the Armistice of November 11, 1918, are
now interned in the ports of the Allied and Associated Powers are
declared to be finally surrendered.

Vessels which are now interned in neutral ports will be there surrendered
to the Governments of the Principal Allied and Associated Powers. The
German Government must address a notification to that effect to the
neutral Powers on the coming into force of the present Treaty.

Article 185.

Within a period of two months from the coming into force of the present
Treaty the German surface warships enumerated below will be surrendered
to the Governments of the Principal Allied and Associated Powers in such
Allied ports as the said Powers may direct.

Text of May 7:

Within a period of two months from the coming into force of the present
Treaty the German surface warships enumerated below will be surrendered
to the Principal Allied and Associated Powers in such Allied ports as
the said Powers may direct.

These warships will have been disarmed as provided in Article XXIII of
the Armistice of November 11, 1918. Nevertheless they must have all
their guns on board.

By section XXIII of the armistice of November 11, 1918 Germany was to
turn over 6 battle cruisers, 10 battleships, 8 light cruisers, and 50
modern-type destroyers, to remain under the surveillance of the Allies
and the United States. The great roadstead of Scapa Flow was designated
as the place of internment, and the ships were anchored there with
skeleton crews under the immediate charge of a German admiral.

On June 21, 1919 the German sailors aboard the ships opened the seacocks
under orders of the German admiral in command, and all the hulks were
scuttled. The German admiral alleged that he acted in the belief that
the armistice expired at noon on June 21. That belief was without any
foundation since the convention of February 16, 1919 prolonging the
armistice distinctly avoided naming a date for its expiration and
reserved to the Allied and Associated Powers themselves the right to
terminate the period of prolongation at three days’ notice, which had
not been given.

The President of the peace conference on June 25 called the attention of
the German Government to this outright violation of the armistice terms
and, while not exercising the consequent right of resuming hostilities,
informed Germany that the Allied and Associated Governments would take
such measures as they deemed appropriate.

The matter was given a solution by the protocol signed on behalf of
Germany at the deposit of ratifications of the treaty of January 10,
1920. The relevant terms of that protocol are as follows (United
Kingdom, Protocols and Correspondence Between the
Supreme Council and the Conference of Ambassadors and the German
Government and the German Peace Delegation Between January 10, 1920,
and July 17, 1920, Respecting the Execution of the Treaty of
Versailles of June 28, 1919, Misc. No. 15, Cmd. 1325, p.
7):

“Finally, as the Allied and Associated Powers could not allow to pass
without penalty the other failures to execute the armistice conventions
[Page 345]and violations so serious
as the destruction of the German fleet at Scapa Flow, the destruction of
U.C. 48 off Ferrol and the destruction in the North Sea of certain
submarines on their way to England for surrender, Germany undertakes—

“1.—A. To hand over as reparation for the destruction of the
German fleet at Scapa Flow:—

(a.)

Within sixty days from the date of the signature of
the present protocol and in the conditions laid down in
the second paragraph of article 185 of the Treaty of
Peace the five following light cruisers:—

Königsberg.

Pillau.

Graudenz.

Regensburg.

Strassburg.

(b.)

Within ninety days from the date of the signature of
the present protocol, and in good condition and ready
for service in every respect, such a number of floating
docks, floating cranes, tugs and dredgers, equivalent to
a total displacement of 400,000 tons, as the Principal
Allied and Associated Powers may require. As regards the
docks, the lifting power will be considered as the
displacement. In the number of docks referred to above
there will be about 75 per cent, of docks over 10,000
tons. The whole of this material will be handed over on
the spot.

“B. To deliver within ten days from the signature of the present
protocol a complete list of all floating docks, floating cranes,
tugs and dredgers which are German property. This list, which
will be delivered to the Naval Inter-Allied Commission of
Control referred to in article 209 of the Treaty of Peace, will
specify the material which on the 11th November, 1918, belonged
to the German Government or in which the German Government had
at that date an important interest.

“C. The officers and men who formed the crews of the warships
sunk at Scapa Flow and who are at present detained by the
Principal Allied and Associated Powers will, with the exception
of those whose surrender is provided for by article 228 of the
Treaty of Peace, be repatriated at latest when Germany has
carried out the provisions of paragraphs A and B above.

“D. The destroyer B.98 will be considered as one of the forty-two
destroyers whose delivery is provided for by article 185 of the
Treaty of Peace.

“2. To hand over within ten days from the signature of the
present protocol the engines and motors of the submarines U.137
and U.138 as compensation for the destruction of U.C. 48.

“3. To pay to the Allied and Associated Governments before the
31st January, 1920, the value of the aeronautical material
exported, in accordance with the decision which will be given
and the valuation which will be made and notified by the
Aeronautical Inter-Allied Commission of Control referred to in
article 210 of the Treaty of Peace”.

Article 186.

On the coming into force of the present Treaty the German Government must
undertake, under the supervision of the Governments of the Principal
Allied and Associated Powers, the breaking-up of all the German surface
warships now under construction.

Article 187.

The German auxiliary cruisers and fleet auxiliaries enumerated below will
be disarmed and treated as merchant ships.

The ships sunk at Scapa Flow were eventually raised. All the battleships
and battle cruisers were broken up. Of the light cruisers France
incorporated the Königsberg (Metz), Regensburg (Strasbourg), Stralsund (Mulhouse), and Kolberg
(Colmar) in its fleet, and Italy incorporated
the Pillau, Graudenz (Ancona), and Strassburg. France and
Italy each retained one flotilla leader. France incorporated eight
destroyers and Italy two. Brazil and Poland each received six torpedo
boats for police purposes.

Article 188.

On the expiration of one month from the coming into force of the present
Treaty all German submarines, submarine salvage vessels and docks for
submarines, including the tubular dock, must have been handed over to
the Governments of the Principal Allied and Associated Powers.

Such of these submarines, vessels and docks as are considered by the said
Governments to be fit to proceed under their own power or to be towed
shall be taken by the German Government into such Allied ports as have
been indicated.

The remainder, and also those in course of construction, shall be broken
up entirely by the German Government under the supervision of the said
Governments. The breaking-up must be completed within three months at
the most after the coming into force of the present Treaty.

Article 189.

Articles, machinery and material arising from the breaking-up of German
warships of all kinds, whether surface vessels or submarines, [Page 348]marines, may not be used except
for purely industrial or commercial purposes.

They may not be sold or disposed of to foreign countries.

Article 190.

Germany is forbidden to construct or acquire any warships other than
those intended to replace the units in commission provided for in
Article 181 of the present Treaty.

The warships intended for replacement purposes as above shall not exceed
the following displacement:

Armoured ships

10,000 tons,

Light cruisers

6,000 tons,

Destroyers

800 tons,

Torpedo boats

200 tons.

Except where a ship has been lost, units of the different classes shall
only be replaced at the end of a period of twenty years in the case of
battleships and cruisers, and fifteen years in the case of destroyers
and torpedo boats, counting from the launching of the ship.

Note to V, 190

In June 1928 Germany laid down the first of its Panzerschiffe, which came to be known as “pocket battleships”
because, within the tonnage limit of 10,000 tons, special types of
construction such as an electrically welded hull and methods of saving
weight enabled the designers to increase the armor and armament to an
extent that rendered the striking power comparable to that of a
battleship. The first armored ship of the type was launched in 1931.

Article 191.

The construction or acquisition of any submarine, even for commercial
purposes, shall be forbidden in Germany.

Text of May 7:

The construction and acquisition of any submarine, even for commercial
purposes, shall be forbidden in Germany.

Article 192.

The warships in commission of the German fleet must have on board or in
reserve only the allowance of arms, munitions and war material fixed by
the Principal Allied and Associated Powers.

The warships in commission of the German fleet must only have on board or
in reserve the allowance of arms, munitions and war material fixed by
the Principal Allied and Associated Powers.

Within a month from the fixing of the quantities as above, arms,
munitions and war material of all kinds, including mines and torpedoes,
now in the hands of the German Government and in excess of the said
quantities, shall be surrendered to the Governments of the said Powers
at places to be indicated by them. Such arms, munitions and war material
will be destroyed or rendered useless.

All other stocks, depots or reserves of arms, munitions or naval war
material of all kinds are forbidden.

The manufacture of these articles in German territory for, and their
export to, foreign countries shall be forbidden.

Text of May 7:

The manufacture in German territory and the export of these articles to
foreign countries shall be forbidden.

Article 193.

On the coming into force of the present Treaty Germany will forthwith
sweep up the mines in the following areas in the North Sea to the
eastward of longitude 4°00′ E. of Greenwich:

(1) Between parallels of latitude 53°00′ N. and 59°00′ N.; (2) To the
northward of latitude 60°30′ N.

Germany must keep these areas free from mines.

Germany must also sweep and keep free from mines such areas in the Baltic
as may ultimately be notified by the Governments of the Principal Allied
and Associated Powers.

Article 194.

The personnel of the German Navy shall be recruited entirely by voluntary
engagements entered into for a minimum period of twenty-five consecutive
years for officers and warrant officers; twelve consecutive years for
petty officers and men.

The number engaged to replace those discharged for any reason before the
expiration of their term of service must not exceed five per cent, per
annum of the totals laid down in this Section (Article 183).

The personnel discharged from the Navy must not receive any kind of naval
or military training or undertake any further service in the Navy or
Army.

Officers belonging to the German Navy and not demobilised must engage to
serve till the age of forty-five, unless discharged for sufficient
reasons.

No officer or man of the German mercantile marine shall receive any
training in the Navy.

Article 195.

In order to ensure free passage into the Baltic to all nations, Germany
shall not erect any fortifications in the area comprised between
latitudes 55°27′ N. and 54°00′ N. and longitudes 9°00′ E. and 16°00′ E.
of the meridian of Greenwich, nor instal any guns commanding the
maritime routes between the North Sea and the Baltic. The fortifications
now existing in this area shall be demolished and the guns removed under
the supervision of the Allied Governments and in periods to be fixed by
them.

The German Government shall place at the disposal of the Governments of
the Principal Allied and Associated Powers all hydrographical
information now in its possession concerning the channels and adjoining
waters between the Baltic and the North Sea.

Article 196.

All fortified works and fortifications, other than those mentioned in
Section XIII (Heligoland) of Part III (Political Clauses for Europe) and
in Article 195, now established within fifty kilometres of the German
coast or on German islands off that coast shall be considered as of a
defensive nature and may remain in their existing condition.

No new fortifications shall be constructed within these limits. The
armament of these defences shall not exceed, as regards the number and
calibre of guns, those in position at the date of the coming into force
of the present Treaty. The German Government shall communicate forthwith
particulars thereof to all the European Governments.

On the expiration of a period of two months from the coming into force of
the present Treaty the stocks of ammunition for these guns shall be
reduced to and maintained at a maximum figure of fifteen hundred rounds
per piece for calibres of 4.1-inch and under, and five hundred rounds
per piece for higher calibres.

Note to V, 196

An arrangement between the German, Finnish, and Swedish Governments
concerning the demolition of fortifications on the Aaland [Page 351]Islands and other military
installations was signed at Stockholm on December 30, 1918 and in force
March 28, 1919 (113 British and Foreign State
Papers, p. 993).

For a description of the line of the permitted fortifications, see note
to article 180.

Article 197.

During the three months following the coming into force of the present
Treaty the German high-power wireless telegraphy stations at Nauen,
Hanover and Berlin shall not be used for the transmission of messages
concerning naval, military or political questions of interest to Germany
or any State which has been allied to Germany in the war, without the
assent of the Governments of the Principal Allied and Associated Powers.
These stations may be used for commercial purposes, but only under the
supervision of the said Governments, who will decide the wave-length to
be used.

During the same period Germany shall not build any more high-power
wireless telegraphy stations in her own territory or that of Austria,
Hungary, Bulgaria or Turkey.